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Report on Setting Phosphorus and Nitrogen Targets to Improve Water SETTING PHOSPHORUS AND NITROGEN TARGETS TO IMPROVE WATER QUALITY Andrew Burton and Nicole Armstrong Water Science and Watershed Management Branch December 2020 Manitoba Agriculture and Resource Development Report December 2020 SETTING PHOSPHORUS AND NITROGEN TARGETS TO IMPROVE WATER QUALITY Andrew Burton and Nicole Armstrong Water Science and Watershed Management Branch INTRODUCTION Manitoba and many other jurisdictions globally are experiencing an increase in the frequency and severity of harmful and nuisance algal blooms. Algal blooms occur in aquatic ecosystems as a result of excess nutrients in conjunction with favourable environmental conditions (e.g., warm water temperatures, calm weather conditions) (Foulon et al., 2020). Algal blooms can spoil drinking water, adversely impact recreational use of beaches, reduce property values, and damage fish and other aquatic life. In addition, algal blooms may produce and release algal toxins that are potentially harmful to humans and other mammals. In Manitoba, the most well known example is Lake Winnipeg, which has experienced increasing frequency and intensity of cyanobacterial blooms (Bunting et al., 2011; McCullough et al., 2012; Environment Canada & Manitoba Water Stewardship, 2011; Environment and Climate Change Canada & Manitoba Agriculture and Resource Development, 2020), at times covering more than 10,000 square kilometers of the lake surface area. However, other lakes across the province including Pelican, Killarney, Sandy, Stephenfield, Minnewasta, and lakes in Whiteshell Provincial Park also experience algal blooms. Manitoba also occasionally posts first and/or second level advisories in an effort to protect public health when densities of cyanobacteria or concentrations of algal toxin exceed water quality objectives. While less commonly reported, algal blooms also occur in rivers and streams in Manitoba, particularly during warm weather when flows are low. Nuisance algal blooms are often composed of various types of cyanobacteria (or blue green algae), but may also include (or be dominated by) other algal species such as green algae or attached algae such as diatoms that can grow on fisher’s nets and other submersed objects. Historically, there has been acceptance that primary productivity and algal biomass is limited by: phosphorus in freshwaters (Schindler, 1974, 1977); nitrogen in marine waters (Vitousek & Howarth, 1991; Howarth & Marino 2006); and, transitions between phosphorus and nitrogen in estuaries (Hecky & Kilham, 1988). Case studies and whole lake experiments, many of which have been conducted at the Experimental Lakes Area (ELA) over multi-decade timescales, have provided evidence that the supply of phosphorus is one of the key factors controlling eutrophication in freshwaters (Schindler, 2012; Schindler et al., 2016; Higgins et al., 2018) and that elimination of these inputs favours better water quality (Jeppesen et al., 2005; McCrackin et al., 2017). Phosphorus abatement strategies have led to water quality improvements in many freshwaters globally within varying landscapes and of varying physiological and biogeochemical characteristics (Schindler et al., 2016). However, control of phosphorus inputs has not resolved eutrophication issues in some freshwaters, which has prompted 2 further investigation into other potentially important drivers of eutrophication, particularly nitrogen pollution and internal nutrient cycling (Sterner, 2008; Paerl et al., 2016a,b). For decades, experts have debated the relative importance of reducing nitrogen to prevent symptoms of eutrophication and to protect water quality. More recently, data are available documenting water quality improvements and reduced phytoplankton biomass through load reduction of both phosphorus and nitrogen over the long-term (Köhler et al., 2005; Paerl et al., 2016b; Søndergaard et al., 2017). As a result, the strategy of reducing phosphorus alone to prevent symptoms of eutrophication has been challenged over the past two decades (Paerl et al., 2016b; Dodds & Smith, 2016; Poikane et al., 2019). The dual nitrogen and phosphorus reduction strategy is based on evidence that nitrogen can also play in important role in controlling primary productivity in a diverse array of freshwater lakes (Elser et al., 1990; Dolman et al., 2016; Paerl et al., 2018) and rivers (Dodds & Smith, 2016; Jarvie et al., 2018) and may be equally as important as phosphorus in some ecosystems (Davis et al., 2015). In addition, failure to control nitrogen inputs upstream can lead to problems in aquatic environments downstream (e.g., estuarine or coastal marine environments) where nitrogen-limiting conditions contribute to marine eutrophication (Paerl et al., 2018). As a result, there has been increasing support in the scientific community that both nitrogen and phosphorus need to be controlled to reduce algal blooms and the production of toxins in freshwater, estuarine, and coastal marine ecosystems (Conley et al., 2009; Paerl et al., 2011a, Lewis et al., 2011; Dolman et al., 2012; Smith et al., 2016; Paerl & Otten, 2016; Paerl et al., 2019; Scott et al., 2019), particularly in systems that are rich in phosphorus (Bunting et al., 2005; Leavitt et al., 2006; Swarbrick et al., 2019, 2020). Adoption of water quality criteria (or targets, benchmarks, objectives or guidelines) for both phosphorus and nitrogen to protect water quality is occurring more widely in jurisdictions around the world (Wurtsbaugh et al., 2019). For example, in 2015 the United States Environmental Protection Agency (US EPA) described the need to control both nitrogen and phosphorus to prevent eutrophication (US EPA, 2015). In addition, approximately half of the member states of the European Union (EU) incorporate both nitrogen and phosphorus criteria into management strategies to protect the ecological status, including combating nutrient enrichment, of freshwater lakes and rivers (European Water Directive, 2000; Poikane et al., 2019). Other jurisdictions in the Lake Winnipeg watershed include both nitrogen and phosphorus in their nutrient reduction strategies (for example, North Dakota and Minnesota). The Prairie Provinces Water 3 Board (which has responsibility for transboundary water quality between Alberta, Saskatchewan, and Manitoba) has set water quality objectives for phosphorus and nitrogen in transboundary rivers including those that flow directly into Lake Winnipeg. The International Joint Commission recently recommended both phosphorus and nitrogen targets and objectives for the Red River at the US/Canada border. Of note, Manitoba is a participant in both the Prairie Provinces Water Board and the International Joint Commission’s Red River work. Further, many of the larger wastewater treatment facilities across the Canadian prairies include both phosphorus and nitrogen removal (for example, Calgary and Regina). Manitoba adopted a dual nutrient management approach in the early 2000s and has continued to include both nitrogen and phosphorus in the development of nutrient reduction strategies. The Government of Manitoba is proposing a new regulation under The Water Protection Act to establish nutrient targets for Lake Winnipeg and the major tributaries flowing into the lake. As part of this process, information and science regarding nutrients and algal blooms was reviewed and a rationale for establishing nutrient targets for both nitrogen and phosphorus to improve water quality in Manitoba is summarized below. NUTRIENT TARGETS FOR NITROGEN AND PHOSPHORUS The rationale for developing nutrient targets for nitrogen and phosphorus for Lake Winnipeg and its tributaries can be summarized in nine key points: 1) Nitrogen is a pollutant and concentrations are increasing in Manitoba’s rivers and lakes. Nitrogen and phosphorus are both considered pollutants when they occur in excess and concentrations of both have generally increased in Manitoba over the past several decades. Since the early 2000s, several water quality assessments have documented changes in nutrient concentrations in surface waters across the prairie region over various timescales (Jones & Armstrong, 2001; Vecchia, 2005; Paquette, 2011; Environment Canada, 2011; PPWB, 2016; Nustad & Vecchia, 2020, among others). In 2011, a national water quality assessment found that slow moving prairie rivers upstream of Lake Winnipeg had among the highest nutrient concentrations in the country (Environment Canada, 2011). In general, analyses of historical monitoring data from the 1970s to 2015 indicate that nutrient concentrations (i.e., nitrate + nitrite, total nitrogen, total dissolved phosphorus, total phosphorus) have increased in many prairie rivers (Environment Canada, 2011; PPWB, 2016; Nustad & Vecchia, 2020). In some cases, nutrient concentrations have increased by as much as 200 percent (Jones & Armstrong, 4 2001). In some rivers and streams, increases in nitrogen concentrations have been larger than those observed for phosphorus (Jones & Armstrong, 2001). Effects of nitrogen pollution may also be more pronounced in waterbodies that already have high concentrations of phosphorus, such as many in southern Manitoba. Stable isotope analyses and paleolimnological studies have shown algae growth is more closely linked to nitrogen influx compared to phosphorus, particularly in phosphorus-rich systems (Bunting et al., 2005; Leavitt et al., 2006, Xu et al., 2010; Bogard et al., 2020). Nitrogen pollution in phosphorus-rich lakes has been shown to increase cyanobacterial production and toxicity by up to
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